“EMERGENCY RELIEF AS ROUTINE”: The Evolution of FSA’s Livestock Forage Disaster Program in an Era of Persistent Drought

Author

Shae L. OlsenFollow

Year of Award

2025

Document Type

Thesis

Degree Type

Master of Science (MS)

Degree Name

Environmental Studies

Committee Chair

Dr. Margiana Petersen-Rockney

Commitee Members

Dr. Kyle Bocinsky, Dr. Hilary Faxon

Keywords

Agriculture, the Livestock Forage Disaster Program, livestock, drought, land access, beginning farmers

Subject Categories

Agricultural and Resource Economics | American Politics | Environmental Studies | Food Studies | Other Political Science | Social Justice

Abstract

This thesis examines the historical origins, current limitations, and future of the Farm Service Agency’s (FSA) Livestock Forage Disaster Program (LFP), the primary federal drought disaster relief program for ranchers in the United States. Drawing connections between the Dust Bowl-era Agricultural Adjustment Act (AAA) and LFP, I argue that the AAA, while innovative at the time, prioritized the maintenance of commodity markets over ecological resilience, disproportionately benefiting white, landowning producers. This trend is reflected in LFP today. Through a policy analysis and original qualitative research, including interviews with 23 FSA staff members in nine states, I examine how LFP operates on the ground and the challenges faced by those responsible for its administration. My findings indicate that while FSA staff view LFP as a critical lifeline during worsening drought conditions, the program fails to serve many of the producers most vulnerable to losses during drought, particularly tenant, beginning, and socially disadvantaged farmers and ranchers. LFP participation is hindered by burdensome documentation requirements, historical discrimination within the FSA and its county committee (COC) system, and a structure that prioritizes production during droughts over adaptation. Instead of eliminating the program, I propose that LFP be restructured. LFP payment amounts should be based on land values instead of commodity prices, and the implementation of adaptation practices must be a condition for receiving payment. The USDA also needs new drought relief programs tailored to low-capital and socially disadvantaged producers. Broader institutional reforms within the USDA, like abolishing the county committee system and reinstating the Office of Civil Rights, are also essential. As climate change reshapes American agriculture, disaster relief must evolve to support all producers, not just those who fit within outdated systems.

Recommended Citation

Olsen, Shae L., "“EMERGENCY RELIEF AS ROUTINE”: The Evolution of FSA’s Livestock Forage Disaster Program in an Era of Persistent Drought" (2025). Graduate Student Theses, Dissertations, & Professional Papers. 12523.
https://scholarworks.umt.edu/etd/12523